Shipwrecks and their cargo commonly have been regarded as property.
The first recorded recoveries from sunken ships were commercial ventures. The
Greek historian, Herodotus, records such efforts in the 5th century B.C. Sunken
cargos, weapons, fittings, even major ship components, all were salvaged whenever
technically feasible. For centuries after the classical Greeks, shipwreck recoveries
were thought of only in commercial terms. For the most part, the earliest recoveries
of ancient artifacts of interest for archeology, art history, and history date
to the 19th century. Then, salvors and sponge divers occasionally came across
ancient objects while carrying out their work.

This is a strikingly different perspective than the one we have
regarding terrestrial sites. Even the early historic exploration and excavation
of sites on land aimed to recover works of art and curiosities. The purpose
of these initial efforts was not strictly commercial, although recovered objects
often had inherent monetary value also. Since 1906 in the United States, through
the public policies established in the Antiquities Act and expanded throughout
the century by other statutes, archeological resources, and other kinds of historic
properties, have come to be viewed mainly for their commemorative, educational,
and scientific value.

The fact that shipwreck excavations continue to be associated
in the public mind primarily with treasure shows how difficult it can be to
change perceptions. The fascination with such projects, whether done for treasure
or science, feeds particularly on the mystique of adventure, danger, and derring-do
that often is associated with archeology. Underwater excavations, particularly,
conjure up the swashbuckling, treasure-loving, havoc-spreading dark side of
Indiana Jones that is part and parcel of this image.

One reason for this is that shipwreck sites are as exotic and
remote as ancient sites were at first discovery by Europeans. Typically they
are difficult to find and require elaborate logistics to investigate. Due to
this relative inaccessibility, museums and collectors may see treasure hunters
as their only source of artifacts. Even certain governments—motivated by fame,
money, or the desire to develop tourist attractions—allow, and sometimes promote,
treasure hunting or salvage.

All these factors make protecting submerged sites difficult
for both organizations and individuals, from the local level to the national.
In the United States, the Abandoned Shipwreck Act of 1987 envisions an approach
that balances a wide range of interests. In enacting the statute, the United
States declared that the commemorative, educational, historic, and recreational
value of shipwreck sites are of special importance. As such, the federal government
asserted an interest in having these sites protected and preserved for public
enjoyment and education. However, the law recognizes that the states should
have the responsibility for caring for historic shipwrecks and deciding the
appropriate uses of them.

To assist states that already have submerged cultural resources
programs, as well as those that do not, the ASA directed the National Park Service
to prepare guidelines for the comprehensive management of historic wrecks. Published
in 1990, these guidelines recognize and try to balance the variety of interests
at stake.

Given this backdrop, how can we promote preservation? The general
challenge is a long-term approach to changing public attitudes. Essential to
such an approach is working with teachers to modify school curricula, as is
underway to meet similar challenges in preserving terrestrial sites. Students
should be introduced to archeology as a way of learning about these wrecks and
the stories that can be derived from proper study of them. An important part
of this message is that historic shipwrecks should be preserved for the public
benefit.

Products aimed directly at the public—exhibitions, brochures,
TV programs, newspaper stories, and World Wide Web sites—are also needed. Such
products, likewise, should promote a preservation theme.

Effective law enforcement has a role in a long-term approach.
A few believe they have the right to plunder shipwrecks, even those protected
by federal, state, or local law. When an individual or organization is caught
in illegal actions, law enforcement must be swift and effective. Successful
prosecutions of plunderers should be widely publicized to serve as a deterrent.
This publicity will also provide a reference point for the public on what constitutes
inappropriate and illegal behavior.

However, the law must go beyond protecting against looters.
There is a critical need for planning and zoning laws, on all levels, to protect
submerged sites in harm's way of projects like dock construction, public or
private. Where such laws exist, preservationists must ensure that they are implemented.

Historic shipwrecks have an exotic history and their preservation
is inherently difficult. However, at least some of the keys to their preservation
and commemoration are the ones that ensure the same for their counterparts on
dry land.